宅基地使用权流转的困境与出路

第30卷 第5期2016年5月

Vol.30 No.5

May,2016

中国土地科学

China Land Sciences

doi: 10.11994/zgtdkx.20160607.110715宅基地使用权流转的困境与出路

宋志红

（国家行政学院，北京 100089）

摘要：研究目的：就如何解决宅基地使用权流转的两难困境提出建议。研究方法：文献分析法、规范分析法。研究结果：中国现行管理规定禁止宅基地使用权向本农民集体之外的主体流转，这一规定在实践中遭遇了私下流转盛行和宅基地闲置浪费的挑战。当前赞成和反对宅基地使用权流转的声音同样强烈，此次农民住房财产权抵押贷款改革试点并未明确态度。权衡正反两方面观点，完全禁止宅基地使用权对外流转的理由并不充分。争议背后凸显的是宅基地担负的社会保障功能与财产功能之间的冲突，进一步言是稳定与效率的冲突。鉴于中国区域发展的不平衡性，不同区域农民对宅基地的保障依赖程度不同，对宅基地发挥财产功能的诉求大小也不相同，在充分尊重当地农民意愿的基础上分区域逐步推进宅基地使用权有条件的对外流转，是能兼顾各方利益的务实对策。研究结论：应当推行宅基地使用权的有条件对外流转。

关键词：土地制度； 宅基地使用权；流转；路径；

中图分类号：F301.1 文献标识码：A 文章编号：1001-8158（2016）05-0013-08 How to Solve the Dilemma of Transferring Land Use Right for Farmers’

Housing in Market

SONG Zhi-hong

（Chinese Academy of Governance, Beijing 100089, China）

Abstract: The purpose of this paper is to give suggestions to how to solve the dilemma of transferring Land Use Right for Farmers’ Housing in market. The methods of literature analysis and normative analysis are applied. The results show that: the current prescription that prohibits farmers from selling their houses with Land Use Rights to parties that are not members of the same village collective organization has been challenged by a large number of illegal transfers as well as a large amount of idle farmers’ housing land. The voices from both parties that are for or against transferring Land Use Right of Farmers’ Housing in market are equally strong. The current pilot of farmers’ housing property rights mortgage fails to give a clear attitude to this dispute. By analyzing the arguments of both sides comprehensively, we find that the reasons for forbidding market transfer are not sufficient. The dispute reflects the confliction between the two distinguishing functions that Farmers’ Land Use Right for Housing is undertaking, namely social security function and property function, as well as the confliction between stabilization and efficiency. In view of the imbalance of regional development in China, farmers in different regions depend on land’s social security function to different extents. Moreover, farmers

收稿日期：2016-03-18；修稿日期：2016-04-28

基金项目：国家社科基金青年项目“农村土地经营权与承包权分离的法律制度构建研究”（15CFX048）。

作者简介：宋志红（1980-），女，湖北京山人，副教授，博士。主要研究方向为民商法、土地法、房地产法。E-mail: s_zhihong@https://www.wendangku.net/doc/459316994.html,